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March 11, 2020

Congressional Requesters

Freedom of Information Act: Federal Agencies’ Recent Implementation Efforts

The Freedom of Information Act (FOIA), enacted into law more than 50 years ago, requires
federal agencies to provide the public with access to government records and information based
on the principles of openness and accountability in government. 1 As required by law, 118
agencies reported their FOIA activities to the Department of Justice (DOJ) for fiscal year (FY)
2018.

DOJ’s Office of Information Policy (OIP), National Archives and Records Administration’s Office
of Government Information Services (OGIS), and the Chief FOIA Officers Council each have
roles supporting agency implementation of FOIA. Specifically, OIP is responsible for
“encouraging agencies’ compliance with FOIA and overseeing their implementation of the Act.”
OGIS’s responsibilities include reviewing agencies’ policies, procedures, and compliance with
the FOIA, and identifying methods to improve compliance. The Chief FOIA Officers Council,
which is co-chaired by the Director of OIP and the Director of OGIS, was established to assist in
FOIA compliance and efficiency.

You asked us to review federal agencies’ efforts to implement the FOIA Improvement Act of
2016. 2 This report provides information on
1. government-wide FOIA activity from fiscal year (FY) 2012 through 2018,
2. steps OIP and OGIS have taken to assist agencies in implementing the FOIA
Improvement Act of 2016 since 2018, and
3. progress selected agencies have made on updating FOIA regulations since 2018.
Earlier this month, we briefed your staff on the results of our review. This letter formally
transmits the briefing slides (see enclosure I).

To describe government-wide FOIA activity, we reviewed FY 2012 through 2018 data from the
agencies required to report key FOIA statistics to DOJ for posting on FOIA.gov. These data
included government-wide statistics on the number of FOIA requests and backlogged requests,
processing timeliness, denials of requests, and agency-reported FOIA resources (staff and
spending). We assessed the reliability of the data by reviewing related documentation,
interviewing knowledgeable agency officials, and conducting data testing for missing data,

15 U.S.C. § 552.

2FOIA Improvement Act of 2016, Pub. L. No. 114-185, 130 Stat. 538 (2016) (provisions codified at 5 U.S.C. § 552).

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outliers, and obvious errors. We found the data sufficiently reliable for the purposes of
describing government-wide FOIA activity for FY 2012 through 2018.

To describe OIP and OGIS efforts to support FOIA implementation, we reviewed recent policies,
guidance, and other relevant documentation OIP and OGIS provided to agencies and
interviewed OIP and OGIS officials.

To describe selected agencies’ efforts to update FOIA regulations as we recommended in 2018,

we reviewed the Federal Register and interviewed officials from the six agencies that we
previously recommended should update their regulations about the status of their efforts. 3
These agencies were the American Battle Monuments Commission, U.S. Agency for Global
Media, Department of State, National Aeronautics and Space Administration, Office of
Management and Budget, and U.S. African Development Foundation.

We conducted this performance audit from October 2019 to March 2020 in accordance with
generally accepted government auditing standards. Those standards require that we plan and
perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our
findings and conclusions based on our audit objectives. We believe that the evidence obtained
provides a reasonable basis for our findings and conclusions based on our audit objectives.

In summary, we found the following:

• Federal Agencies’ FOIA Activity. Agencies reported an increase of more than 30

percent in the number of FOIA requests received from FY 2012 to 2018. Agencies are
generally required to respond to a FOIA request within 20 business days with a
determination of the scope of the documents they will produce and the exemptions they
will claim with respect to any withheld document. Agencies are then required to promptly
provide the responsive documents, if any. From FY 2012 to 2018, the backlog of
requests—that is, the number of requests or administrative appeals that are pending
beyond FOIA’s required time period for a response at the end of the FY—increased over
80 percent. 4 However, with the exception of FY 2014, the growth in the backlog has
generally tracked the growth in the number of requests. From FY 2015 through 2018, the
backlog was around 15 percent of requests received. Agencies also reported that
resources spent on FOIA implementation increased from FY 2012 to 2018.

• OIP and OGIS Assistance. Since 2018, OIP continued to provide a range of resources
for federal agencies including policy guidance and training for agency personnel. OIP
also managed the submission of agency reporting requirements and used these data to
assess agency compliance with FOIA as well as determine the need for additional
resources to guide agencies. OGIS, as the Federal FOIA Ombudsman, provided

3GAO,Freedom of Information Act: Agencies Are Implementing Requirements but Additional Actions Are Needed
GAO-18-365 (Washington, D.C.: June 25, 2018).
4The FOIA defines unusual circumstances when an agency may extend this deadline by an additional 10 business
days. These include (I) the need to search for and collect the requested records from field facilities or other
establishments that are separate from the office processing the request; (II) the need to search for, collect, and
appropriately examine a voluminous amount of separate and distinct records which are demanded in a single
request; or (III) the need for consultation, which shall be conducted with all practicable speed, with another agency
having a substantial interest in the determination of the request or among two or more components of the agency
having substantial subject-matter interest therein. 5 U.S.C. § 552(a)(6)(B)(iii).

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 resources to both federal agencies and the general public, such as dispute resolution
services. OGIS also identified methods to improve agency compliance.

• FOIA Regulation Updates. As of February 2020, two out of six agencies—National

Aeronautics and Space Administration and the Office of Management and Budget—
updated their FOIA regulations to comply with the FOIA Improvement Act of 2016, as we
recommended in 2018. 5 Agency officials from all four of the agencies that have not yet
updated their regulations—the American Battle Monuments Commission, U.S. Agency
for Global Media, Department of State, and U.S. African Development Foundation—told
us that they are taking steps to do so. Until these four agencies publish updated
regulations that address the necessary requirements, as called for in FOIA and OIP
guidance, they likely will be unable to provide the public with required regulatory and
procedural information to ensure transparency and accountability in the government.

Agency Comments and Our Evaluation

We provided a draft of this report to the Department of Justice, National Archives and Records
Administration, American Battle Monuments Commission, U.S. Agency for Global Media,
Department of State, National Aeronautics and Space Administration, Office of Management
and Budget, and U.S. African Development Foundation. We received written comments from
the National Archives and Records Administration that are reprinted in enclosure II and
summarized below. We received email comments from the U.S. African Development
Foundation that are also summarized below. The Department of Justice, National Archives and
Records Administration, Department of State, and U.S. Agency for Global Media provided
technical comments, which we incorporated as appropriate. The American Battle Monuments
Commission, National Aeronautics and Space Administration, and Office of Management and
Budget told us that they had no comments.

The National Archives and Records Administration’s Office of Government Information Services
stated that it balances assessing agency-specific compliance with government-wide compliance
issues. Although government-wide assessments have taken priority in recent years, it has not
stopped assessing individual agency FOIA programs. Accordingly, we have reflected this
information in our report.

The Associate General Counsel of the U.S. African Development Foundation stated that the
lack of updated regulations does not affect the public because the agency does not charge fees.
We believe fully implementing FOIA requirements will better position agencies to provide the
public with necessary access to government records and ensure openness in government.

As agreed with your offices, unless you publicly announce the contents of this report earlier, we
plan no further distribution until 5 days from the report date. At that time, we will send copies to
the appropriate congressional committees, the Attorney General of the United States, Archivist
of the United States, Secretary of the American Battle Monuments Commission, Chief Executive
Officer and Director of the U.S. Agency for Global Media, Secretary of State, Administrator of
the National Aeronautics and Space Administration, Director of the Office of Management and
Budget, President and Chief Executive Officer of the U.S. African Development Foundation, and
other interested parties. In addition, the report is available at no charge on the GAO website at
https://www.gao.gov.

5GAO-18-365.

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If you or your staff have any questions about this report, please contact me at (202) 512-6806 or
SagerM@gao.gov. Contact points for our Offices of Congressional Relations and Public Affairs
may be found on the last page of this report. GAO staff members who made major contributions
to this report were Susan E. Murphy (Assistant Director), Melissa L. King (Analyst In Charge)
Giny Cheong, Ann L. Czapiewski, Andrew Howard, Gina M. Hoover, Amalia Konstas, Samantha
Lalisan, Neelaxi Lakhmani, Krista Loose, Lori D. Martinez, and Joseph Recht.

Michelle Sager
Director
Strategic Issues

Enclosures - 2

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List of Requesters

The Honorable Dianne Feinstein

Ranking Member
Committee on the Judiciary
United States Senate

The Honorable Carolyn Maloney

Chairwoman
The Honorable Jim Jordan
Ranking Member
Committee on Oversight and Reform
House of Representatives

The Honorable John Cornyn

United States Senate

The Honorable Charles E. Grassley

United States Senate

The Honorable Patrick Leahy

United States Senate

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Enclosure II: Comments from the National Archives and Records Administration

(103891)

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